Transportation Programming Process*
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TRANSPORTATION PROGRAMMING PROCESS SPECIAL REPORT 157 • TRANSPORTATION RESEARCH BOARD • NATIONAL RESEARCH COUNCIL 1975 TRANSPORTATION RESEARCH BOARD Officers Milton Pikarsk, Chairman Harold L. Michael, Vice Chairman W. N. Carey, Jr., Executive Director Executive Committee Harvey Brooks Robert N. Hunter Chairman, Commission on Sociotechnical Chief Engineer, Missouri State Highway Systems, National Research Council (ex officio) Commission Asaph H. Hall Scheffer Lang Federal Railroad Administrator (ex officio) Assistant to the President, Association of Frank C. Herringer American Railroads Urban Mass Transportation Administrator Benjamin Lax (ex officio) Director, Francis Bitter National Magnet Henrik E. Stafseth Labbratory, Massachusetts Institute of Executive Director, American. Association of Technology State Highway and Transportation Officials Daniel McFadden (ex officio) Department of Economics, University of Norbert T. Tiemann California, Berkeley Federal Highway Administrator (ex officio) Harold L. Michael William L. Garrison School of Civil Engineering, Director, Institute of Transportation and Purdue University Traffic Engineering, University of California. D. Grant Mickle Berkeley (ex officio, Past Chairman, 1973) Highway Users Federation for Safety and Jay W. Brown Mobility Director of Road .Operations, Florida James A. Moe Department of Transportation Executive Engineer, Hydro and Community (ex officio, Past Chairman, 1974) Facilities Division, Bechtel, Inc. George H. Andrews Milton Pikarsky Director, Washington Department of High ways Chairman and Chief Executive Officer, Kurt W. Bauer Regional Transit Authority, Chicago Executive Director, Southeastern Wisconsin J. Phillip Richley Regional Planning Commission Vice President— Transportation, Dalton, Manuel Carballo Dalton, Little and Newport Deputy Commissioner, New Jersey Department Raymond T; Schuler of Transportation Commissioner; New York State Department L. S. Crane of Transportation Executive Vice Presiden t— Operations, William K. Smith Southern Railway System Vice President, General Mills, Inc. James M. Davey R. Stokes Consultant, Manchester, Michigan Executive Director, American Public Louis J. Gambaccini. Transit Association Vice President and General Manager, Percy A. Wood Poet Authority Trans-Hudson Corporation Executive Vice President and Chief Operating Alfred Hedefine Officer, United Air Lines Senior Vice President, Parsons, Brincker/zoff, Quade and Douglas, Inc. TRANSPORTATION PROGRAMMING PROCESS* Proceedings of a conference held March 23-26, 1975, at Orlando, Florida SPECIAL REPORT 157 TRANSPORTATION RESEARCH BOARD, NATIONAL RESEARCH COUNCIL, WASHINGTON, D.C. 1975 Transportation Research Board Special Report 157 The conference that is the subject of this report Price $3.40 was approved by the Governing Board of the National Edited for TRB by Mildred Clark Research Council acting in behalf of the National Academy of Sciences. Such approval reflects the Governing Board's judgment that the conference is of subject areas national importance and appropriate with respect to 11 transportation administration both the purposes and resources of the National Re- 14 transportation finance search Council. 15 transportation economics The members of the c9mmittee selected to organize 81 urban transportation administration the conference and to supervise the preparation of this report were chosen for recognized scholarly compe- tence and with due consideration for the balance of disciplines appropriate to the project. Responsibility for the selection of the participants in the conference and for any summaries or recommen- dations in this report rests with that committee. The views expressed in individual papers and attributed to the authors of those papers are those of the authors and do not necessarily reflect the view of the commit- tee, the Transportation Research Board, the National Transportation Research Board publications are Academy of Sciences, or the sponsors of the project. available by ordering directly from the Board. They Each report issuing from such a conference of the are also obtainable on a regular basis through organiza- National Research Council is reviewed by an indepen- tional or individual supporting membership in the dent group of qualified individuals according to pro- Board; members or library subscribers are eligible for cedures established and monitored by the Report Re- substantial discounts. For further information, write view Committee of the National Academy of Sciences. to the Transportation Research Board, National Academy Distribution of the report is approved by the President of Sciences, 2101 Constitution Avenue, N.W., Washing- of the Academy upon satisfactory completion of the ton, D.C. 20418. review process. LIBRARY OF CONGRESS CATALOGING IN PUBLICATION DATA National Research Council. Transportation Research Board. Transportation programming process. (Special report—Transportation Research Board; 157) 1. Transportation planning—United States—Congresses. 2. Transportation and state—United States— Congresses. I. Series: National Research Council. Transportation Research Board. Special report— Transportation Research Board; 157. HE19317 380.5'0973 75-23491 ISBN 0.309-02391-2 Contents INTRODUCTION 1 DISCUSSION Robert W. Nelson 40 SUMMARY OF CONFERENCE W. M. Hilliard 41 Steering Committee 2 PRICING AND INVESTMENT SUMMARY OF WORKSHOPS 6 IN TRANSPORTATION FACILITIES PROGRAMMING IN George W. Hilton 45 PERSPECTIVE James R. Nelson 14 PROGRAM DEVELOPMENT J. Robert Harbison 51 FEDERAL ROLE IN DISCUSSION PROGRAMMING Thomas F. Humphrey 53 Theodore C. Lutz 25 Thomas P. Messier 56 STATE ROLE IN DECISION MAKING PROGRAMMING Alan Altshuler 59 Harry R. Hughes 28 DISCUSSION Norman H. Emerson 65 LOCAL ROLE IN PROGRAMMING EVALUATION Milton Pikarsky 31 Walter L. Revell 67 DISCUSSION RESOURCE AND FINANCIAL Lester P. Lamm 69 MANAGEMENT: SOME C. Kenneth Or.ski 70 PERSISTENT AND PERPLEXING PROGRAMMING PROBLEMS PARTICIPANTh AND Raymond T. Schuler 34 SPONSORING COMMITTEE 73 Introduction The transportation programming process includes those activities that are required to finance, select, and schedule projects that have been identified through the planning function of federal, state, and local agencies. Programming includes funding consider- ations such as allocation of funds among major programs, among states and local areas, among modes of transportation, and among projects. Within this framework of funding constraints, goals, objectives, and selection criteria for proposed transportation fa- cilities are developed. Since recent legislation introduced a wide variety of special considerations that must be incorporated into practice in each state and urban area, the form of federal participation in transportation financing is undergoing substantial change at all levels in the programming process. Traditionally, programming has been accomplished independently for each mode of transportation, and the processes in use have varied significantly among modes. Inter- modal planning has received greater emphasis since the U.S. Department of Transporta- tion and numerous state departments of transportation were created. This emphasis has challenged conventional programming techniques to be responsive to new require- ments resulting from a broader, more comprehensive approach to transportation planning. Recognizing the need for the exchange of ideas and experiences among individuals who have primary responsibility in the area of programming, the Office of the Secretary of the U.S. Department of Transportation, the Federal Highway Administration, the Urban Mass Transportation Administration, and the Federal Aviation Administration asked the Transportation Research Board to prepare a report on multimodal trans- portation programming. To accomplish this task, the Transportation Research Board invited a small group of participants to a conference in Orlando, Florida, March 23-2 6, 1975, to address a set of questions related to programming. The conference format consisted of the presentation of formal papers, prepared discussions, and workshop sessions. This report includes the steering committee summary, the summary of the work- shops, and the formal papers presented at the conference. Summary of Conf erence Steering Committee Throughout the Conference on the Transportation Programming Process, a number of issues kept emerging both in the workshops and in the formal presentations. These key issues are discussed in this summary report. The issues can be divided into 6 areas: Programming should be based on goals and objectives and not on fund structures; Governmental roles in programming should be clearly delineated; Programming should continue to emphasize the trend toward decentralization of decision making to the lowest feasible level of government; Fiscal philosophy for transportation programs is moving away from modal trust funding and categorical grants; Diverseness and disparateness are characteristics of the present time (common agreement on needed transportation systems no longer exists); and There should be a continuum in the planning, programming, and project-selection processes. PROGRAMMING BASED ON GOALS, NOT AVAILABLE FUNDS The conferees emphasized that program definition should be based on transportation goals and objectives and not on availability of categorical allocations of funds from higher governmental levels. Program needs should be first defined, and then sources should be found to meet those needs. To fund all programs may be impossible,